THE EFFECTIVENESS OF INTEGRATED DEVELOPMENT PLANNING
FOR SERVICE DELIVERY AND ECONOMIC GROWTH
A Dissertation submitted in fulfillment of the requirements for the degree of
MASTERS OF ADMINISTRATION IN PUBLIC ADMINISTRATION
NORTH -WEST UNIVERSITY (MAFIKENG CAMPUS)
BY
MAMOGOMANE PHINDILE MOKAE
STUDENT NO# 17114187
OCTOBER 2012
SUPERVISOR: DR T.E MABILLE
CO-SUPERVISOR: A. I T ABANE
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O'i3 ,AKNOWLEDGEMENTS
Firstly I would like to take this chance to thank the almighty God who protects, provides and plans for every action I take in my life. I would also like to thank my supervisor Dr Tebogo Mabille, who has tirelessly offered the necessary guidance, criticism and the needed academic input to the perfection and completion of this thesis. My eternal thanks also go to Mr. A.E Tabane for helping co-supervise this thesis.
Sec~ ~rlly I like to thank the Dr Ruth Segomotsi Mompati Municipality for giving me permission to conduct this research. Your willingness to participate in this study assisted in the completion of this dissertation. I would also like to thank employees of the Department of Health, who supported me after my involvement in a car accident.
Thirdly I thank my parents Tryphina and Sehularo Mokae, who encourage and support me year after year in my academic journey without judging me and with great patience. Without you I couldn't have reached anything in my life. You have been a good support structure, I wish you do the same with my siblings, help them build their future. I would not forget to give my greatest thanks to my grandmother, Mamogomane Mokae who has been everything to me from an early age until now. I hope you live longer so you can enjoy my success.
Lastly I thank all my friends and everyone who helped me with this dissertation, be it directly or indirectly, you have been very helpful. Thank you for the best and wonderful time we shared, it has been great.
DECLARATION
I, MAMOGOMANE PHINDILE MOKAE, declare that this dissertation submitted for the degree of Masters of Administration in ·Public Administration is my own, independent work and has not been submitted by me to any other university/faculty. I furthermore cede copyright of the dissertation/thesis in favor of the North West University.
ABSTRACT
The aim of the study is to evaluate the effectiveness of the Integrated Development Plan (lOP) as a tool to accelerate service delivery and economic growth. The study is guided by the objectives below:
• Investigate the implementation of the municipal Integrated Development Plan (IDP)
• Establish the problems faced by the Integrated Development Plan (IDP) • Evaluate the level of participation of the public
• Determine the improvement of service delivery brought about by the Integrated Development Plan (lOP)
• Assess the level of skills and capacity of municipal officials and their knowledge, understanding and readiness, for implementation of a successful effective IDP to accelerate service delivery
• Recommend effective ways to accelerate service delivery, poverty alleviation, job creation and economic growth through the IDP. The study achieved the objectives desired through questionnaires. The study is empirical and uses a qualitative methodology.
The study is empirical, and semi-structured questionnaires were used to collect data. The major findings of the study are that: problems such as finance and politics, centralization of authority, lack of skilled and trained IDP employees, limited public participation, and lack of progress on service delivery, economic development, poor infrastructure and poor implementation of IDP are the main problems plaguing the delivery of effective and efficient IDP to address service delivery.
Some of the mam recommendations from the researcher to the municipality in discussion are: Training, skilling and development of municipal employee, Effective management, budgeting and planning Promotion of social and economic development and encouragement of public participation through SMMEs, BEE but most important,
Private Bag X2046, Mmabatho South Africa 2735
School of Undergraduate Studies Tel: +27 18 389-2279/2081 Fax: +27 18 389-2342/2081 Email: Helen.Thomas@nwu.ac.za
Date:17/09/2012
CERTIFICATE OF LANGUAGE EDITING The dissertation entitled
AN EVALUATION OF THE EFFECTIVENESS OF IDP AS A TOOL TO
ACCELERATE SERVICE DELIVERY AND ECONOMIC GROWTH IN THE
DR RU
TH
SEGOMOTSI MOMPATI DISTRICT MUNICIPALITY
Submitted by
For the degree of
In the
MOKAE PHINDILE MAMOGOMANE
MASTER OF ADMINISTRATION
IN PUBLIC ADMINISTRATION
FA
CULTY
OF
COMMERCE AND ADMINISTRATION
MAFIKENG CAMPUS
NORTH WEST UNIVERSITY
has been edited for language by
Ms. Helen Thomas Lecturer
Mary Helen Thomas B.Sc.(Hons) P.G.C.E
ABBREVIATIONS ANI) ACRONYMS
ASGISA-Accelerated and Shared Growth Initiative of South Africa BEE-Black Economic Empowerment
CEO-Community Based Organization CFO- Chief Financial Officer
OF A- Development Facilitation Act
DPLG-Department of Provincial and Local Government EGPD-European Group on Public Administration FEPD-Forum Effective Planning and Development
GEAR-the Growth Employment and Redistribution Strategy HRD-Human Resource Development
lOP- Integrated Development Plan
JIPSA-Joint Initiative for Priority Skills Acquisition LED-Local Economic Development
LGTA-Local Government Transition Act MSA-Municipal System Act
MSP- Municipal Service Partnership
NIDS-National Integrated Development Scheme NGO-Non-Governmental Organization
QDA- Qualitative Data Analysis
RDP- Reconstruction and Development Programme RSA-Republic of South Africa
SANGOCO- South African Non Governmental Coalition SMMEs- Small Medi urn and Micro Enterprises
VIP-Ventilated Improved Pit latrine WSDP- Water Services Development Plan
TABLE OF CONTENTS PAGES
Acknowledgements ....... i
Declaration ............................ ii
Abstract .................. iii
Abbreviations and Acronyms ....... iv
Certification of language Editing ... v
1. CHAPTER ONE: INTRODUCTION AND ORIENTATION OF THE STUDY 1.11ntroduction ... 1
1.2 Definition of concepts ... 2
1.3 Background to the study ... 6
1.4 Statement of the problem ... 15
15 Research Questions ... 16-17 1.6 Aim and Objectives of the study ... 17
1.7 Research Design and Methodology ... 18
1.8 Scope of the study ... 21
1.9 Rationale ... 22
1.10 Organization of the study ... 23
2. CHAPTER TWO: LITERATURE REVIEW ON lOP, SERVICE DELIVERY AND ECONOMIC GROWTH
2.11ntroduction ... 25
2.2 integrated development planning, economic development and service delivery: international perspective ... 29
2.3 International perspective on IDP ... 39
2.4 Legal framework on local government service delivery in South Africa ... 42
2.5 Service delivery in South Africa ... 43
2.6 Public participation in South Africa ... 46
2.7 Employee capacity and skills in South Africa ... 48
2.8 Economic growth in South Africa ... SO 2.9 Strategies, plans, policies and laws to accelerate service delivery, poverty alleviation and economic development prior to IDP ... 51
2.10 Integrated Development Plan ... 56
2.11 Conclusion ... 60
3. CHAPTER THREE: RESEARCH DESIGN AND METHODOLOGY 3.11ntroduction ... 62
3.2 Research Design ... 62
3.3 Research Methodology ... 63
3.4 Data Collection ... 64
3.5 Sampling ... 68
3.6 Method of Data Analysis and lnterpretation ... 70
3.8 Ethical consideration ... 71
3.9 Conclusion ... 71
4. CHAPTER FOUR: DATA PRESENTATION, ANALYSIS AND INTERPRETATION 4.11ntroduction ... 72
4.2 Data Presentation ... 73
4.3 Data Presentation ... 79
4.4 Data lnterpretation ... 92
4.5 Conclusion ... 99
5. CHAPTER FIVE: SUMMARY, FINDINGS, CONCLUSION AND RECOMMENDATIONS 5.11ntroduction ... 101
5.2 Summary ... : ... 101
5.3 Major findings of the study ... 103
5.4 Recommendations ... 107 5.5 Future Research ... 117 5.6 Conclusion ... 117 Bl BLIOGRAPHY .......... 120 TABLES Table 4.1 ... 73 Table 4.2 ... 74 Table 4.3 ... 74 Table 4.4 ... 75
Table 4.5 ... 76 Table 4.6 ... 76 Table 4.7 ... 77 Table 4.8 ... 78 Table 4.9 ... 79 Table 4.10 ... 80 Table 4.11. ... 81 Table 4.12 ... 81 Table 4.13 ... 82 Table 4.14 ... 83 Table 4.15 ... 84 Table 4.16 ... 85 Table 4.17 ... 86 Table 4.18 ... 87 Statement 11 ... 88 Statement 12 ... 88 Statement 13 ... 89 Statement 14 ... 89 Table 4.23 ... 90 Table 4.24 ... 91
CHAPTER ONE
INTRODUCTION AND ORIENT A TION OF THE STUDY
1.1 Introduction
An Integrated Development Plan (lOP) is a developmental plan for a municipal area containing short, medium and long-term objectives and strategies. It serves as a principal strategic management instrument for municipalities. It is legislated by the Municipal Systems Act 2000 (MSA) and supersedes all other plans that guide development at a local level. The IDP approach has to conform to specific methodological principles. It has to reflect the priority needs of the municipality and its residents and ensure that available resources are used in an objective oriented manner (lOP guide pack: 1999/200).
The Municipal Systems Act 32 of 2000 (MSA) defines integrated development planning as one of the core functions of a municipality in the context of its developmental orientation. MSA requires the IDP to be strategic and inclusive in nature. The IDP should link, integrate and coordinate other plans, while taking development proposals into account. It should be aligned with the municipality's resources and capacity, while forming a policy framework on which annual budgets are based. The integrated Development Plan must be compatible with national and provincial development plans and planning requirements (Municipal System Act 2000).
Service delivery is one of the key mandates of local government and the South African constitution clearly states that every citizen is entitled to a good service. It goes further to give citizens the right to protest if they are not satisfied with the services they are receiving from government. South Africa has been dubbed the protest capital of the world and has one of the highest rates of public protest in the world. During the 2004/05 financial year about 6,000 protests were officially recorded, an unknown number of
protests went unrecorded, and about 1,000 protests were illegally banned. Many reasons
for these protests were offered, but the primary reason appeared to be the dissatisfaction
with the delivery of basic municipal services such as running water, electricity and toilets
especially in informal and rural settlements. Other reasons include unemployment, high
levels of poverty, poor infrastructure and the lack of houses (Dlamini: 2011 :2).
Therefore IDP aims to co-ordinate the work of local and other spheres of governrnent in a
coherent plan to improve the quality of life for all the people living in an area. It takes into
account the existing conditions, and the problems and resources available for
development. The plan looks at economic and social development for the area as a whole.
It must set a framework for how land should be used, what infrastructure and services are
needed and how the environment should be protected (IDP guide pack, 1999/2000). This
chapter discusses the background to the study, aim and objectives of the study, research
questions; significance of the study, research design and methodology, limitation of the
study, organization of the study and gives a conclusion.
1.2 Definition of concepts 1.2.1 Evaluation
Evaluation is the process of examining a subject and rating it based on its important
features, or to form an opinion of the amount, value or quality of something after thinking
about it carefully (Simpson & Edmund, 20 11:205). According to Cloete, Wissink and de
Coning (2006), evaluation determines the value or the effectiveness of an activity for the
purpose of decision-making. It is the use of a policy analytic research method or
technique to measure performance programmes/projects so that the continuous change in
activities can be determined with a view to improving effectiveness, especially their
impact on the conditions they are supposed to change (Cloete, Wissink & de Coning,
2006:247). In the article written by Terbort (2001 ), a municipality can evaluate a few
of finances, and efficiency and effectiveness of the whole organization m delivering
public services (Terbort, 2001 :621-43).
Different types of evaluation can be undertaken. They can be distinguished according to
different criteria which include the stage of the policy, project or whatever is evaluated,
linked to the focus of the exercise; timeframe of the project, policy, programme that is
evaluated, and the scope of the evaluation (Cloete, Wissink & de Coning, 2006:250).
According to Cloete et al (2006), reasons for evaluation are: to measure progress towards
the achievement of policy objectives, to learn lessons from the project/programme for the
future review, redesign or implementation of strategies; to test the feasibility of an
assumption, principle, model, theory, proposal or strategy; and to provide political or
financial accounting, to better advocate cause and for public relations purposes.
1.2.2 Effectiveness
Effectiveness can be defined as the extent to which objectives are met (Khalo, Moeti,
Mafunisa, Makondo & Nsingo, and 2007:91 ). The objectives of IDP are to transform
municipal and institutional development, local economic development, basic service
delivery and infrastructure investment, financial viability and financial management, good
governance and Community Participation. According to the United States Agency for
International Development (USAID: 2007), effectiveness in municipalities can be met
through communication, sustainability of services (that is goods and services should be
provided to the society in a way that they sustain them for a long time, e.g., water,
electricity, waste removal, land and economy), performance of municipal employees,
reduction of costs (that is to provide quality goods, but at less cost), accountability and all
in all, goods and services that are relevant and necessary are provided in time. The
organization furthermore states that the municipality should come up with strategies and
adopt and implement policies to develop it in order to deliver effective services (Davis,
1.2.3 Integrated Development Plan (IDP)
Integrated Development Planning is an approach to planning that involves the entire
municipality and its citizens in finding the best solutions to achieve good long-term development (lOP guide pack, 2000). According to the lOP guide pack (1999/200) in
contrast to the role planning has played in the past, integrated development planning is a
function of municipal management and is part of an integrated system of planning and
service delivery. The IDP process is meant to arrive at decisions on key issues such as
municipal budgets, land management, promotion of local economic development and
institutional transformation in a consultative, systematic and strategic manner. It therefore
not only informs municipal management on key issues, but also guides the activities of
other spheres of government, corporate service providers, NGO's and the private sector
(lOP guide pack, 1999/2000).
1.2.4 Accelerate
Accelerate can be defined as to cause to move faster (Simpson& Weiner, 2000:256).
According to the speech given by Minister Nathi Mthethwa (May 2011), more resources
need to be made available at local government level to accelerate delivery. The Municipal
Systems Amendment Bill, would also ensure competent and well qualified officials are
appointed. The Bill would make senior municipal officials more accountable to their
councils and prohibit municipal managers and their direct subordinates from being
political party office bearers and in so doing would speed up service delivery (Gabara:
May , 2011:). The Department of Cooperative Governance argues that service delivery
can be accelerated through evaluation and monitoring of projects, deepening of
democracy among the public and government officials, improvement of access to basic
services, intensifying training of municipal officials especially those responsible for the
establishing municipal account committees (Department of Cooperative Governance and Traditional Affairs, 201 0).
1.2.5 Service Delivery
Service delivery is defined as the provision or supply of a public need by a local government institution (Whitaker, 2006:240). Gildenhuys and Knipe (2000) argue that governments are bound to supply and deliver public goods and services to their communities in order to execute functions needed to realise their goals and objectives. They state that governments supply services to communities for their order and protection, social welfare and economic welfare functions, which may be categorised as order and protection services, social welfare services and economic welfare services. According to Serban (201 0:2-3), of local development groups for United National Development Planning, basic services to be provided by any municipality in (collaboration with other government departments where necessary) include accessible clean water, proper sanitation, electricity, housing, accessible roads, and infrastructure, which consists of economic infrastructure (industries, factories, agriculture), and social infrastructure (clinics, schools, recreations).
According to Public Service Regulations of 2001, criteria public services should be : Quantity:- services and products supplied in sufficient volume and diversity to sustain basic needs, Quality:- the services and products are of such quality that they will last for an appropriate period of time so that they do not have to be re-supplied at additional cost, Time/Timeliness:- the services and products are rendered on time so that customers can derive maximum benefit from them, Value for money: when the cost of the product or service is balanced against the value derived by the recipient irrespective of whether or not customers pay directly for products and services, it is important that the cost of the product or service is balanced against the value derived by the recipient. Access:- the services and products being delivered at the ideal locality to relevant customers to enable them to make best use of them, without incurring undue cost to gain access to the point of
delivery Equity:- the services and products should be provided without discrimination (Public Service Regulations, 2001 ).
1.2.6 Economic Growth
Economic growth is best defined as a long term expansion of the productive potential of the economy, and sustainable economic growth should lead to higher real living standards and rising employment (Frederick & Fourie, 2010:11 ). The Constitution of 1996 requires that a municipality must structure and manage its administration and budgeting and planning processes to give priority to the basic needs of the community, and to promote the social and economic development of the community. For municipalities economic growth is defined by technological innovations, access to water, adequate housing, job creation, alleviation of poverty, infrastructure, proper sanitation, telecommunication, total reduction in backlogs and creation of strong municipal revenue base (Ruiters: 2007). According to Buffalo City Metro Municipality, economic growth of any municipality can be reached through projects which includes industrial and infrastructure, training and skilling of public officials, encouragement of investment especially foreign investment,
creation of international partnership and business forums which includes public participation because that way economic growth will also be sustainable (Buffalo City Metro IDP review 2007 /2008).
1.3 Background to the Study
Dr Ruth Segomotsi Mompati District Municipality (DC39) is the largest region within the North West Province as indicated on figure 2.1, with a surface area of 47 478 km2 in extent (40.82% of the total area ofNorth West Province). It lies 1200m above sea level and is dry, sunny and very hot in summer. It is consists of six local municipalities i.e. Naledi LM covering 7264 km2
(NW392), Greater Taung LM covering 5640 km2 (NW394), Lekwa-Teemane LM covering 3681 km2 (NW396), Mamusa LM covering 3615 km2 (NW393) and Molopo-Kagisano covering 27278 km2 (NW397). It was formerly known as the western regions (Bophirima) and shares its borders with Botswana
and the Northern Cape Province of South Africa. The district has strong agricultural and mining influences and includes the world renowned heritage site at Taung (Taung skull). The district has twenty nine (29) councilors according to the demarcation board. The major towns are surrounded by very low density, scattered rural settlements, villages and vast rural areas (DR R S Mompati district municipality IDP, 2011).
Figure 1: Demarcation Board 2009
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The maJor towns within Dr Ruth S Mompati District Municipality include; Vryburg, Bloernhof, Christiana, Taung and Schweizer-Reneke.The N14 link Vryburg with Northern Cape Province. The towns are connected by tarred roads, despite the long
distances between them. The town of Vryburg is situated at the important junction of the N18 and N14 highways.
The District is semi-arid, with vegetation characterized by turf thronged and mixed bushveld areas. The area receives variable rain with scattered thunderstorms and flooding. During hot summers there is high evaporation and elevated temperature. Rainfall varies from 400 to 600 annually, with most occurring during midsummer. A limited part of the geographical area adjacent to the eastern boundary has slightly higher rainfall averages, between 800 to 1 OOOmm per year. The lowest rainfall (Omm) occurs in June and the highest (70mm) in February. Thunderstorms and hail can occur but are lower than figures obtained for the Highveld region. The monthly distribution of average daily maximum temperatures shows that the average midday temperatures range from 18°C in June to 31 °C in January. The District is the coldest during July when the mercury drops to 0°C on average during the night ((DR R S Mompati District Municipality lOP, 2011 & global insight survey: 2009).
The population of the district is estimated at approximately 5024 78 consisting of 244 77 males and 258 401 females. Population groups include largely Setswana speaking Africans, Indians, White and coloured.
There is an overall framework of policies which all have the same goal which is to develop and sustain local government for municipal service delivery in South Africa to help provide service delivery underpinned by, among others, the Constitution (chapter 10). The policies stipulate providing decent services impartially, fairly and equitably and responding to people's needs by encouraging participation in policymaking and include the lOP (which is adopted to develop municipalities and speed up service delivery), LED, the Reconstruction and Development Programme (RDP), the Growth Employment and Redistribution strategy (GEAR) and the Whitepaper on Local Government. Despite all
these, poor service delivery and poor local governance remains an overwhelming problem in most South African municipalities (Bond, 2002:5).
In South Africa, the management of municipal services has been an ongoing problem for
the new government because of a culture of non-payment among users. As a result, prepayment has been widely implemented in electricity, telephone and, more recently
water services. But prepaid service delivery has only relieved absolute poverty, but more
generally has become linked to negative outcomes such as intermittent services and increased household stress (Ruiters, 2007:487). According to Ruiters, although formal
apartheid in South Africa has been outlawed, blacks are still concentrated in racially
homogeneous urban townships, and growing informal settlements on the periphery of
cities. With 61% of the African population poor, compared to only 1 %of South Africa's 5 million whites, and with 30% unemployed, service delivery plays a pivotal role in
everyday survival (Ruiters, 2007:487).
Although more Africans have access to basic infrastructure, twelve times more Africans
still obtain water from a public tap, borehole or a neighbour's tap than do other population
groups (Statistics South Africa, 2006). South Africa's 284 municipalities have
experienced severe difficulties in managing services, especially in billing and collecting revenue. Twenty-three of the largest towns failed to collect 60% of what they were owed by the end of2005 and faced serious cash flow problems (Business Day, 2006).
Although the consequences of municipal financial problems are apparent, determining the
cause of the difficulties is problematic. The failure to identify and understand the nature
of the problem can lead to inappropriate responses. It is important to make a distinction between systems weaknesses and structural weaknesses in municipalities. This distinction
is inherent within both the Local Government White Paper analysis of municipal
constraints and the resulting legislation. Systems weaknesses are related to problems with
the capacity of the municipality to perform its tasks (including personnel problems; inadequate disciplinary procedures and performance management systems; and
ineffective financial management systems). Systems weaknesses can be addressed
through capacity building and training of staff, and by implementing new and efficient
systems. However, capacity building and systems improvement as techniques for addressing the existing deficiencies of municipalities have their limitations (Pycroft, 2001: 147).
1.3.1 Finance
Many municipalities face problems of severe lack of funds to carry out their constitutional mandates to improve the quantity and quality of basic services to citizens. The local
government services backlogs are estimated at between R47 - R53bn, with an annual
service backlog of R 1 Obn. These are amounts that will be required for municipalities to
increase access to services and therefore deal successfully with the massive backlogs
(Nthonkulu &Rapoo, 2001 ).
1.3.2 Employee Skills and Capacity
The severe lack of capacity at municipal level tends to come in the form of inadequate
managerial skills and technical expertise, which has proved debilitating for service
delivery. This is particularly evident outside of the metropolitan areas. Also, the perceived
lack of service-orientation at municipal level including ineffective and inefficient
administrative structures,are often seen as obstacles to dealing with the huge service
backlogs in many poor communities (Padayakee, 2006:77).
There are councils where well-trained and highly motivated staff operating efficient municipal systems fails to deliver adequate municipal services and where the council
exhibits financial difficulties. For these municipalities, concentration on capacity building
and systems improvement will not necessarily create a viable municipality. The problem
in these municipalities is structural. What is required is the fundamental restructuring of municipalities to ensure that the economic fundamentals of the council provide a basis
from which municipal viability can be ensured or achieved once the systems weaknesses have been addressed. The restructuring process envisaged by the White Paper will address this in three ways: the geographic boundaries of each municipality will be re-examined in an effort to increase the income-generating capacity of the municipalities; the council and administrative structure will be re-examined to ensure that sufficient resources remain available to fund an ever- increasing level of service delivery; and municipal systems will be re-examined and new systems introduced, to improve the efficiency and accountability of local government. The Local Government White Paper details the framework for municipal rationalization and restructuring (Pycroft, 2001: 146).
1.3.3 Lack of understanding of the IDP process
Although recognized as a distinct sphere of government, municipalities remain the 'poor relation' of South Africa's intergovernmental system. The intention of the planning legislation (both the Development Facilitation Act and Local Government Transition Act the and soon to be introduced Municipal Systems Bill) is admirable. The legislative framework seeks to empower bottom-up planning and, in theory, gives municipalities the legal power to 'bind' both provincial and national spheres to the planning requirements of the Integrated Development Plans (IDPs). In practice, municipalities have insufficient capacity to compile and enforce meaningful IDPs. The absence of compatibility between the municipal financial year (which runs from June to July) and the provincial and national financial year (which runs from April to March) undermines efforts to synchronize national and provincial plans with the municipal IDPs. There is a lack of understanding, particularly at provincial level, of the municipal planning process, and a reluctance on the part of provincial governments (which already feel constrained by national dictates) to further cede autonomy over their development objectives to municipal plans (Pycroft, 2001: 149).
Confusion is also created by the perpetuation of two planning systems - the Land Development Objective (LDO) process of the Development Facilitation Act (DF A), and
the Integrated Development Planning (IDP) process of the Local Government Transition Act (LGTA) and the Municipal Systems Bill.
Implicit in the third operational objective, democratizing development is the assumption that regular democratic local government elections are an insufficient democratizing mechanism for developmental local government. What is required is a continual process of dialogue between municipalities and their communities, as well as community participation in all aspects of council activity - the encouragement of participatory democracy in the provision of local government services. Ward committees are to be strengthened as a means of encouraging and facilitating the active participation of the community in council decision-making and implementation (Pycroft, 200 I : 149).
1.3.4 Decentralization
Whilst decentralization can enhance efficiency and promote more accountability and responsive governance, there are real limitations. In many developing countries, including South Africa, the capacity of local government to give effect to its fiscal power is a serious limitation. In South Africa this problem is compounded by the integration of previously disadvantaged communities into municipal boundaries, a culture of non-payment, and poor administrative systems, all of which has manifested as a staggeringly high level of debt. On paper the solutions are easy: increase revenue; reduce expenditure; or do a combination of both. However, in reality the challenge is more complex and multi-faceted - there are political and socio-economic facets as well as institutional aspects, including shortages of skills, performance-orientation of staff and adequate physical resources (Ahmad, 2005; 288).
1.3.5 Accountability
Another problem is the long route of accountability that leads some to advocate decentralization as a means of strengthening accountability and thereby improving service delivery. Devolving responsibility for public services to lower tiers of government means that the politician who is responsible for these is now elected locally. The hope is that this would make him more accountable to the citizens, as they can monitor him more closely and attribute changes in service quality to him more easily. That is, decentralization will strengthen the citizen- local politician relationship of accountability, and thereby the other relationships of accountability for service delivery (Pycroft, 2001: 150).
1.3.6 Infrastructure
Infrastructural provision in the municipalities, especially in rural areas, has historically been provided in a haphazard and unstructured manner. The overall objective in the provision of infrastructure is in addressing the backlogs to provide for balanced growth in an equitable manner with the emphasis being on accessibility to basic services, which need to be provided in a sustainable and affordable manner to local communities (Pycroft,
2001: 147).
1.3. 7 Sewarage Disposal
One of service delivery problems is sewage disposal. In most Municipalities, especially informal towns and settlements, there is no formal service of sewage disposal. The disposal of sewage effluent is of great concern where this will in future affect the underground water system. Where this groundwater is used for human consumption through boreholes, the risk of the spread of disease becomes unacceptably high. In fact,
besides the use of pit latrines as some form of sewage disposal, there are households in the tribal areas with no access to such forms of disposal (Kanvur, 2007:31).
1.3.8 Telecommunications
The telecommunications network of Telkom is prone to interruptions mainly due to the theft of cable. This aspect is currently being addressed by the service provider by the provision of fibre optic cable links and also through a combination of telephone lines and radio links. This upgrading programme mainly affects the urban centres, and the rural centres are still in need ofthese facilities which assured supply (Kanvur, 2007:31).
1.3.9 Water and Electric supply
The basic human right of people to have access to a potable source of water at a rate of 251/capita per day within a walking distance of 200m, as provided for in the Constitution of South Africa, needs to be recognized as the eventual goal in the provision of this service. The majority of households (69 %) within the municipal area has inadequate access to potable water supply and has to use water from streams and rivers for human consumption. Only about 12.28 % of the households have water connected to their houses. A backlog of 5890 households with inadequate water supply has to be addressed (Ruiters, 2007:486). South Africa has also experienced problems of electricity as few people have access to electricity and there are widespread cut-offs and disconnections as people are not able to pay for electricity due to socio-economic reasons (Ruiters, 2007:491).
1.3.10 SocioEconomic Reasons
Socio-economic reasons relate to the inability of consumers to pay for services due to endemic poverty. These reasons are partially addressed through the provision of indigent and other social grants. But the problems of poverty are far deeper than these grants alone can address. Therefore, in terms of their developmental local governance responsibilities, municipalities must also implement socio-economic development programmes that will facilitate local economic development and thereby enhance consumers' ability to pay for
services and improve their quality of life (Bond, 2002:5).The constitution of South Africa is an important policy document that forms part of the framework for municipal government in South Africa. It requires municipalities to assume a developmental role in providing basic services; this responsibility obliges municipalities to engage in activities that facilitate social development and economic growth.
The White Paper on Local Government seeks to establish the mechanisms by which developmental local government will be achieved (South Africa, 1996: 81; Ministry for Provincial Affairs and Constitutional Development, 1998). The creation of developmental local government will require the restructuring of councils' institutional approach to the management of the local space, changes in leadership, a focus on poverty alleviation, economic growth, and the management of development in an integrated and sustainable manner and requires entrenched socioeconomic inequalities to be addressed. The White Paper on Local Government identifies four inter-related aspects of maximizing economic growth and social development (Pycroft, 2001: 148).
According to the white Paper on Local Government, municipal programmes are supposed to facilitate community involvement at both design and delivery level. This policy document also allows municipalities to consider alternative methods of delivering affordable services to citizens. The Municipal Systems Act (2000)encouraged municipalities to promote democratic participation by citizens m the way they are governed, and also defined how a municipality should provide municipal services to citizens (Naidoo, 2000:8).
1.4 Statement of the problem
The main problem addressed by this study is the lack of implementation of IDP. Failure of implementation of IDP presents a major hazard in South African municipalities; service delivery in these municipalities is plagued by the impact of failure to implement IDP policies. South Africa is characterised by inequitable growth and development, a high
degree of poverty, poor service delivery, increasing demands and limited resources, and the challenge of integration. The need for improved standards of living and access to effective service delivery, economic growth and better infrastructure which are seen as crucial issues in addressing poverty, coupled with poor service delivery, and a poor municipal economic base have necessitated the introduction of Integrated Development Planning (IDP) (Befile, 2009).
The need to address poor service delivery and poor municipal economic growth in poor communities has necessitated that the government, international agencies and NGOs pay more attention to the poor so that they can be helped to live more fruitful lives and become instruments for the growth of democracy and their economy (Befile, 2009). Because of the problems discussed in the background of the study above (lack of funding, centralization of power, lack of accountability, poor employee skills and knowledge to execute development plans, socio-economic problems, and etc,) it is difficult for municipalities to implement IDP. Failure to implement the IDP leads to poor service delivery, poverty, unemployment and poor economic growth. In half of municipalities in South Africa IDP is treated as a guideline, a plan and a framework rather than an official policy and is not implemented (Pycroft, 2001 :98). This study seeks to evaluate the effectiveness of IDP as a tool to accelerate service delivery and economic growth, and to recommend better implementation ofiDP.
1.5 Research questions
• The study is guided by the following research questions:
• How can the IDP prepared by municipalities be made realistic and effective? • What are the problems that are encountered by IDP which prevent it to being
effective?
• What is the level of participation of the public?
• How the IDP has change/improved the lives of communities in terms of service delivery, job creation, poverty alleviation and economic development?
• What is the level of skills, understanding, knowledge and readiness needed municipal employees for successful effective implementation of the IDP in order
to accelerate service delivery?
• What are better ways and recommendations for municipalities to accelerate
service delivery, poverty alleviation, economic growth and job creation?
1.6 Aim and objectives of the study
1.6.1 Research Aim
The aim of the study is to evaluate the effectiveness of the Integrated Development Plan
(IDP) as a tool to accelerate service delivery and economic growth.
1.6.2 Objectives of the study
The objectives of the study are to:
• Investigate the implementation of the municipal Integrated Development Plan (IDP) in
the Dr Ruth Segomotsi Mompati district municipality.
• Establish the problems faced by implementing the Integrated Development Plan (IDP) in
the Dr Ruth
• Evaluate the level of participation of the public in the Dr Ruth Segomotsi Mompati
district municipality.
• Determine the improvement of service delivery brought about by the Integrated
Development Plan (IDP) in the Dr Ruth Segomotsi Mompati district municipality.
• Assess the level of skills and capacity of municipal officials and their knowledge,
understanding and readiness, for successful and effective implementation of the IDP to
• Recommend effective ways to accelerate service delivery, poverty alleviation, job creation and economic growth through IDP in the Dr Ruth Segomotsi Mompati district municipality.
1.7 Research design and Methodology
1.7.1 Research Design
A research design is a specification of most the adequate operation to be performed in order to test the specific hypothesis under given conditions (Bless & Higson-Smith, 2000:63). Research design addresses the planning of scientific inquiring, designing a strategy for finding out something. Although the special details vary according to what is being studied, there are two major aspects of research. Firstly, the researcher must specify as clearly as possible what is to be found out, and secondly,she/he must determine the best way to do it (Babbie eta!, 2003:72).
Research design can be classified according to the level of scientific rigour involved in proving the causal relationship:
• Pre-experimental are designs that are the least adequate in terms of scientific rigour and thus are least likely to establish a clear causal relationship between the independent and dependent variables.
• Quasi-experiment are designs which do not meet the exacting criteria of experimental designs, but which manage to approximate experimental conditions.
• Experimental design is the most rigorous of all the design and have strict requirement (Babbie eta!, 2003:72).
This study undertakes the empirical study as the research design. Empirical study uses primary data, which include surveys, and experiments, case studies, programme evaluation, interviews and questionnaires (Babbie et al, 2003:73). Under empirical study, triangulation is used, which is the technique, which uses different methods to validate data. Questionnaires were used as a form of data coli
1. 7.2 Research Methodology
Research consists of two methods. The qualitative method relies upon measurement and various scales. Numbers form a coding system by which different cases and different variables may be compared. Systematic changes in score are interpreted or given exactly the same social, cultural and linguistic context. Another important advantage of numbers is that they can be analysed using descriptive and inferential statistics.
Qualitative research is a method of inquiry appropriated in many different academic disciplines, traditionally in the social sciences, but also in market research and further contexts. Qualitative researchers aim to gather an in-depth understanding of human behaviour and the reasons that govern such behaviour (Bless et a!., 2000:39). This study undertakes a qualitative method.
1.7.3 Data sampling
Sampling is that part of statistical practice concerned with the selection of an unbiased or random subset of individual observations within a population of individuals intended to yield some knowledge about the population of concern, especially for the purposes of making predictions based on statistical inference. Sampling is an important aspect of data collection (Bless eta!., 2000:39).
Researchers rarely survey the entire population for two reasons; the cost is too high, and the population is dynamic in that the individuals making up the population may change over time. The three main advantages of sampling are that the cost is lower, data collection is faster, and since the data set is smaller it is possible to ensure homogeneity and to improve the accuracy and quality of the data (Bless eta!., 2000:39).
The sample was taken from all six local municipality officials, and the technique used to
select the sample size was convenient, simple random sampling was used for selecting
samples from the wide population. The population included IDP co-coordinators, IDP
forums, municipal managers, chief financial officers and municipal employees from
within the district municipality. The population of this study is (N) 500% and the sample
taken is 40(n).
1. 7.4 Data Collection
Data collection is a term used to describe a process of preparing and collecting data- for
example as part of a process improvement or similar project. The purpose of data
collection is to obtain information to keep on record, to make decisions about important
issues, to pass information on to others. Primarily, data is collected to provide information regarding a specific topic. There are many methods of collecting primary data and the main methods include: questionnaires, focus group, interviews, observation, case- study, diaries and critical incidents portfolios. Questionnaires are a popular means of collecting data, but are difficult to design and often require many rewrites before an acceptable questionnaire is produced (Bless et a!., 2000:1 04-09). Data will be collected through questionnaires. The district municipality consists of six local municipalities, and the CFO, IDP director, Municipal managers and wards councilors will be given questionnaires
together with members of the public.
17.5 Data analysis and interpretation of results
Analysis of data is a process of inspecting, cleaning, transforming, and modelling data
with the goal of highlighting useful information, suggesting conclusions, and supporting
decision making. Data analysis has multiple facets and approaches, encompassing diverse techniques under a variety of names, in different business, science, and social science domains. This study will undertake Qualitative Data Analysis (QDA) which is the range of processes and procedures whereby we move from the qualitative data that have been collected into some form of explanation, understanding or interpretation of the people and
situations we are investigating. QDA is usually based on an interpretative philosophy. The idea is to examine the meaningful and symbolic content of qualitative data (Egan,
2002:263). The results depict aspects such as the level of participation of the public in
IDP, and the rate at which IDP progresses to produce accelerated service delivery. Data will be presented in bar charts, tables or graphs, which highlight the findings as a tool to
accelerate service delivery.
1.9 Scope of the study
The study concentrated on Dr Ruth Segomotsi Mompati District Municipality; the
municipality consists of 6 local municipalities (Greater Taung, Kagisano, Naledi, Molopo,
Lekwa-teemane and Mamusa) with a population of approximately 500 000 who are
experiencing ineffective service delivery and a poor municipal economic base. The study
will also be relevant to any other municipality in South Africa as all local government
practice IDP. The study evaluates how far the IDP has changed the lives of the people
within this municipality and if IDP is effective. enough to accelerate services. The study
also establishes the problems encountered by the IDP process and recommends ways to
execute IDP more effectively.
1.8 Rationale
The Integrated Development Plan (IDP) is aimed at integrated development and management of the area under the jurisdiction of the municipality and is developed in
terms of its allocated powers and duties. According to the Municipal Systems Act (RSA,
2000), municipalities are required to prepare a five-year strategic plan that is reviewed
annually in consultation with local communities and other stakeholders in the
municipality. The IDP seeks to promote integration by balancing the social, economic and
ecological aspects of sustainability without compromising the institutional capacity
required in implementation (Akani, 2002). The IDP is seen as a local pathway to
sustainable development in South Africa, and it is used to foster more appropriate service
social development within a municipality and, by implication, it facilitates poverty relief. The associated planning process is meant to arrive at decisions such as the design of
appropriate municipal budgets, land management, the promotion of local economic
development and institutional transformation in a consultative, systematic and strategic
manner (Akani, 2002).
In view of the above there is a need for proper planning and implementation of IDP
projects, as well as monitoring and assessment of success on the part of local government
in order to help to eliminate poverty in the community. In this context, the IDP seeks to
address poor service delivery, poor economic growth and poverty as its programme is
focused on improving the lives of the poor by putting in place the necessary infrastructure
and mechanisms that will ideally permit the attainment of social and economic
development.
1.10 Organization of the study
CHAPTER 1: INTRODUCTION AND ORIENTATION OF THE STUDY
This chapter introduces the study and outlines the problem that has been investigated. It
includes the following-: introduction to the study, background of the study, the research
problem, specific objectives, questions to be addressed, hypothesis if any, research design
and methodology, significance of the study, scope of the study and organization of the
study is provided. Statement ofthe problems states exactly what the study is investigating,
Research aim is about what the study is to achieve, and research objectives guide the
researcher to reach the aim. Research questions help the researcher to reach the
objectives. Significance of the study deals with the benefit the study will provide.
CHAPTER 2 . LITERATURE REVIEW ON THE EFFECTIVENESS OF IDP
The chapter includes the following points-: introduction to the chapter, entry point to the literature review, literature is grouped into different categories. Literature review is an assessment of the existing research on the topic of the study.
CHAPTER 3. RESEARCH DESIGN AND METHODOLOGY
This chapter sets out in detail a strategy for satisfying the purpose, and answer the
research questions. The chapter clarifies the following-: introduction to the chapter,
general methodological orientation, research instruments as well as sampling design,
procedures for data collection and analysis.
CHAPTER 4. ANALYSIS AND INTERPRETATION
This chapter is about data presentation, analysis and interpretation of the results within the
framework of the study. It includes the following-: introduction to the chapter,
organization and objectivity and categorization, presentation of results in charts, tables or
graphs, appropriate interpretation as well as establishment of causal connections.
CHAPTER 5. SUMMARY, FINDINGS, RECOMMENDATIONS, AND CONCLUSION
A brief summary of the study is presented in this chapter. Furthermore, a reflection on the major findings of the study is provided as well as major recommendations and areas for
further research. The chapter includes introduction to the chapter, summary of the
previous chapters, research findings based on each of the specific objectives, recommendations and their motivations and conclusion.
1.11 Conclusion
Poor service delivery and governance remams an overwhelming problem for most municipalities. These governance problems require robust intervention by national
government to expedite local government transformation and development. Municipalities
have a legal obligation to provide basic services to their communities in an adequate and
timely fashion. The failure of municipalities to deliver basic services not only causes
immense hardship to the residents of municipalities, but also can have a detrimental impact on social and economic development.
The next chapter (chapter 2) is literature review, which is about theoretical perspectives and related literature on the topic.
2.1 Introduction
CHAPTER TWO LITERATURE REVIEW
Guildenhuys and Knipe (2000:228) define a municipality as a geographical area of an urban system for which a city council, town council, village council or a similar local government body has been establish to govern and manage the local public activities of
the inhabitants. A municipality is established to promulgate local laws for governing the
local community, and provides and manages local public services (Guildenhuys & Knipe,
2000:228). Whitaker (2006:240) defines service delivery as the provision or supply of a public need by a local government institution. According to Serban (2010:2-3) ofthe local development groups for United National Development Planning, basic services to be provided by any municipality in collaboration with other government departments where necessary include accessible clean water, proper sanitation, electricity, housing, accessible roads, infrastructure which consists of economic infrastructure (industries, factories, agriculture), and social infrastructure (clinics, schools, recreations).
Kitchen (2005: xxxii) argues that municipal services may be delivered in a variety of ways. Alternatives range from complete public provision to complete private provision to a mix of those forms, including public-private partnerships. For public sector provision, the economic and political arguments in support of independent and autonomous or
semi-independent and semi-autonomous special purpose bodies instead of complete public
provision are generally weak. The broad objectives of developing government are to ensure that services are delivered in a way that is sustainable, equitable, efficient, effective and affordable, and consistent with the principles of service delivery.
2.1.1 Role of the municipality in economic growth
Economic growth is defined by Frederick & Fourie (20 10:11) as a long term expansion of the productive potential of the economy, and sustainable economic growth should lead to higher real living standards and rising employment. As mentioned in chapter one, municipal economic growth is defined by technological innovations, access to water, adequate housing, job creation, alleviation of poverty, infrastructure, proper sanitation, telecommunication, total reduction in backlogs and creation of a strong municipal revenue base (Ruiters,2007).
Van der Wal & Hilhorst (2007:7-8) state that availability of physical infrastructure is a major determinant of production costs, product quality and market access. Business land and workspace, reliable water supply, sewage facilities, roads, postal and telecommunication services and electricity are often critical constraints for economic development. Local government may be responsible for creating an enabling physical environment through, for example, provision of legally demarcated land for business development, maintenance and supply of feeder roads and basic utilities such as delivery of electricity and water. Investments in infrastructure are not only made by the public sector. Telecommunication services are increasingly provided by the private sector. Telecommunication networks, for instance, are very often entirely private in Africa. An important role of local government is to address the necessity of proper physical infrastructure in its planning and coordination tasks, in its lobby work, and to include resources (and co-financing arrangements) for physical infrastructure in its budgets.
Local government purchases serv1ces and goods and may also outsource some of its responsibilities. Local government can be an important buyer of services and goods in rural areas thus contributing to and influencing the type of economic growth and employment generation (for example infrastructure-led economic development). It is thus a market for the private sector, which is growing when devolution is strengthened. It is estimated that in Uganda one third of all procurement by the state, is handled by local
governments. In Ghana, for example, local government has influenced the system for sourcing for school meals, emphasizing the importance of buying locally produced food (VanderWal & Hilhorst, 2007:7-8).
Van der Wal & Hilhorst further state that local government also procures also advisory services, may tender for the construction of infrastructure and may outsource the provision and maintenance of public utilities such as drinking water, markets, and even tax collection. The type of procurement system used may contribute to pro-poor development and job creation. In South Africa, legislation is put in place to promote pro-poor economic development and local employment creation by means of a preferential procurement framework for goods and services that targets local companies, and in particular small firms and companies owned by persons from previously disadvantaged communities (i.e. Black Economic Empowerment). The policy has worked best in larger towns where there are more small businesses present. The results improve when municipal officials are more aware of the situation of small and micro enterprises and therefore know how to draft tender documents, but also have more knowledge on the possibilities of using more labour intensive approaches and to improve quality.
Increasing resource mobilization is a key concern for local governments all over the world and is required for the functioning of the local administration and for investments, including those in local economic development. The two major sources for Local Government finance are transfers by central government, projects and programmes, and local taxes and levies. Local Government often looks towards local taxation for raising revenues, as this is more under their control. However, excessive taxation can harm economic development and undermine sustainability (VanderWal & Hilhorst, 2007:7-8). A related issue is the efficiency and transparency of resource use by Local Government (LG). Another registration and administration role of Local Government is developing around land rights and guarding deeds that record land related transactions. The role of Local Government in land administration is growing in importance in a number of countries (Ethiopia, Niger, Mali, and Burundi). In Ethiopia land certificates are prepared
at village level and issued at district level and small farmers are happy to pay land rent as it assures them that the recently issued land certificates are recognized by the LG's as valid documents. In Benin, for example, copies of land sales or rentals are kept by LGs (against a fee) for safekeeping and to prevent conflicts. Local Government is also involved in allocation of land for residential purposes and issuing certificates which allow people to occupy the land (VanderWal & Hilhorst, 2007:7-8).
2.1.2 Reasons for service delivery provided
by
Local governmentGuildenhuys and Knipe (2000:56-59) argue that in order for governments to execute the functions needed to realize their goals and objectives, governments are bound to supply and deliver public goods and services to their communities. Governments supply services for managing order and protection, social welfare and economic welfare functions. They further state that government provides those services that, because of their collective nature, cannot be delivered by the private sector and those services that can be delivered more cheaply and more advantageously by collective effort than by individual effort. These services can be classified as collective services, which are non-apportionable,
particular services, which are apportionable and quasi-collective services which are services, which are both collective and particular services.
According to the South African finance and investment committee (20 11 ), governments are always in a better position to determine the goods to be supplied to the public. In the same way the government is the best agency to collect the resources needed to fund these services. Also, it is the government, which can judge what kinds of services are "optimal" and what the citizen's fair share is. Without government control over public goods markets would not be able to function normally. This is because markets depend heavily on property rights, legal institutions, nomenclature, peace and security and incentives. When none of these is guaranteed, markets will be wary to conduct business freely thereby affecting the society by and large. It is only the government, as a supreme authority, that can guarantee all of this and keep matters under control. Delivering justice is a very important function of the government. lt is arguably the foundation on which a
peaceful society rests. This can, at times, best be achieved by the use of physical force. Governments can carry this out effectively because it is empowered by the constitution. Moreover governments are committed to the principle of due process - e.g., strict rules of evidence, reliability, impending dangers, and quick and fair trial requirements, etc. It is because of this that governments need to provide public goods and health care services to
its citizens (Finance and investment committee, 2011 ).
2.2 Integrated development planning, economic development and service delivery: International perspective.
2.2.1 Theoretical framework on service delivery in Dominica Islands
The Integrated Development Planning Project (generally referred to as the IDP) in
Dominica is a unique and challenging task for two reasons. First, although many
development plans have been prepared for Dominica, the people of the country have not
been engaged in an organized or systematic way in the preparation or implementation of
these plans. Second, although many of these plans have targeted sectoral needs, there
have been very few attempts at consolidating the country's response to these needs into
one holistic national development plan (Martin, 2002).
According to Altherton Martin of the Development Institute of Dominica (2002), the
Planning Framework of the IDP does four new and different things. The values and vision
of the people are treated as key determinants of the direction and strategy for national
development, and as such, the IDP Framework reflects the priority issues as determined
by the stakeholders themselves. The IDP requires mechanisms for ongoing stakeholder
involvement in the preparation of the plan, definition of programs and projects,
implementation of associated actions and in the review of performance for possible
corrective action The Framework encourages stakeholders to shift from a paradigm that
is focused on narrow local, institutional or sectoral issues to an approach to development
into account. The resulting Plan is expected to influence the nature of public expenditure and transparency of expenditure controls at all levels of the economy.
The Institute believes that IDP has the capacity to release the unexplored planning potential of the people of Dominica and to present new and creative arrangements among sectors and stakeholders that can respond to the development challenges facing the country. The expectation is that this Framework will: capture the emerging vision of the people; reflect the values that shape that vision; identify the key issues facing the people; and focus on areas for priority action at the local household and community level, the enterprise and sector levels as well as the inter-sector, national and regional levels.
Martin (2002) also believes that as a Planning Process, the IDP facilitates the direct engagement of people of all sectors, (Public Sector, Private Sector and Civil Society) as stakeholders in the nation's business, continuously performing the following functions; determining the priorities among these issues; defining their vision for Dominica; proposmg measures (institutional, . operational, legal, constitutional) for addressing these issues; proposing measures for formalizing and institutionalizing a participatory approach to planning for national development; becoming involved in the design and implementation of the programs and projects; staying involved in the monitoring, review and evaluation of the activities.
2.2.2 Refocusing on development initiatives
The Development Institute has already pointed out some major actions required for the implementation of both the lOP process and IDP projects. These are:
• endorsement of the IDP process (essentially commitment and action) by the political directorate and its potential successors;
